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536
ISSN 2070-7010
FAO
FISHERIES AND
AQUACULTURE
TECHNICAL
PAPER
International management
of tuna fisheries
Arrangements, challenges and a way forward
Cover photograph:
A tuna seiner fishing in the eastern Pacific Ocean in the process of retrieving its net (courtesy
of Wayne Perryman, Southwest Fisheries Science Center, National Marine Fisheries Service,
National Oceanic and Atmospheric Administration, United States of America).
International management
of tuna fisheries
Arrangements, challenges and a way forward
by
Robin ALLEN
FAO Consultant
Blenheim, New Zealand
FOOD AND AGRICULTURE ORGANIZATION OF THE UNITED NATIONS
Rome, 2010
FAO
FISHERIES AND
AQUACULTURE
TECHNICAL
PAPER
536
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iii
Preparation of this document
The Marine and Inland Fisheries Service (FIRF) is responsible for all programmes
and activities of the Food and Agriculture Organization of the United Nations
(FAO) that relate to the management and conservation of fisheries resources. This
technical paper was prepared as part of the work programme of FIRF to enhance the
understanding of arrangements, challenges and a way forward for the management
of tuna fisheries on a global scale, particularly in the light of international standards
and modern expectations for fisheries management. The key international standards
considered include: (i) the 1982 United Nations Convention on the Law of the Sea;
(ii) the 1992 United Nations Conference on Environment and Development; (iii)
the 1995 FAO Code of Conduct for Responsible Fisheries; and (iv) the 1995 United
Nations Fish Stocks Agreement.
This technical paper was prepared under the direction of Jacek Majkowski,
FIRF. The author is Dr Robin Allen, a tuna expert based in New Zealand. He is
a former Director of the Inter-American Tropical Tuna Commission in La Jolla,
California, United States of America.
iv
Abstract
This paper reviews the current management of tuna fisheries by the five tuna regional
fisheries management organizations (RFMOs), focusing on the management of
target species in the light of international standards and modern expectations for
fisheries management. The key international standards used flow from the 1982
United Nations Convention on the Law of the Sea via the 1992 United Nations
Conference on Environment and Development to the 1995 FAO Code of Conduct
for Responsible Fisheries and the 1995 United Nations Fish Stocks Agreement.
Subsequent to those instruments, other expectations of best practices have been
gathered into the expectation that RFMOs undergo performance reviews.
The paper discusses the status of the stocks of the major species of tuna for
each of five tuna RFMOs and examines the management response of each RFMO.
According to the recommendations of the scientific bodies of the RFMOs, 14 of
the major market species are in need of management action. Of those 14 species, the
commissions of the RFMOs took action commensurate with the scientific advice
in only five cases, and in three of the five cases, the actions only reflected other
circumstances.
Conditions that provide incentives for participating governments to take
(or not to take) cooperative actions to conserve resources are discussed. Apart
from complying with global obligations and expectations, the major necessary
condition for successful negotiation is that all participants in a negotiation should
benefit from agreement to cooperate rather than from unrestrained competition.
The fishery in the eastern Pacific Ocean is used as an example to show that this
condition generally cannot be expected to be met.
The use of rights-based management systems is discussed and these systems
are advanced as a means to facilitate the addressing of shortcomings in the current
conservation and management of tuna fisheries. The elimination of the need to
compete for a share of the available catch allows individuals to optimize their
investment in fishing effort to match their share of the catch, providing them with
the incentive to avoid overcapacity. Secure, exclusive and long-term rights provide
fishers with a collective interest in the conservation of the fisheries and the efficient
use of the resources. Transferability of rights allows fishing opportunities to be
used by those fishers who produce the greatest economic benefits and can provide
a means of reaching an agreement among different sectors of the industry via a
transfer of fishing rights.
Allen, R.
International management of tuna fisheries: arrangements, challenges and a way
forward.
FAO Fisheries and Aquaculture Technical Paper. No. 536. Rome, FAO. 2010. 45p.
v
Contents
Preparation of this document iii
Abstract iv
Tables
– Figures
vi
Acknowledgements vii
Acronyms and abbreviations viii
1. Introduction 1
2. Modern standards of management for tuna fisheries 3
3. The tuna RFMOs and the stocks for which they are
responsible
7
Management and status of major tuna stocks 8
The Commission for the Conservation of the Southern Bluefin
Tuna
9
The Inter-American Tropical Tuna Commission 12
The International Commission for the Conservation of Atlantic
Tuna
17
The Indian Ocean Tuna Commission 22
The Western and Central Pacific Fisheries Commission
Cooperation between the Inter-American Tropical Tuna
Commission and the Western and Central Pacific Fisheries
Commission
24
Summary of the management responses of the RFMO
commissions
28
4. Incentives and disincentives for cooperation in international
tuna fisheries management
31
5. A way forward – Rights-based management 37
6. Conclusion 41
References 43
vi
Figures
1. Distribution of a skipjack tuna fishery and fishery movements 1
2. Trends in nominal catch rates of southern bluefin tuna by age group 10
3. Phase plot of the time series of estimates of stock size and fishing
mortality of eastern Pacific bigeye tuna relative to their MSY
reference points
14
4. Phase plot of the time series of estimates of stock size and fishing
mortality of eastern Pacific yellowfin tuna relative to their MSY
reference points
16
5. Estimates of the stock status of northern Atlantic albacore tuna by
relative biomass (B/B
MSY
) and relative fishing mortality rate (F/F
MSY
)
18
6. Time series of B/B
MSY
and F/F
MSY
showing the progression of the stock
status of bigeye tuna as the Atlantic tuna fisheries evolved, 1950–2005
19
7. Stock status of the eastern Atlantic bluefin tuna 20
8. Stock status trajectories of Atlantic yellowfin tuna B/B
MSY
and F/F
MSY
from age-strutured and production model analyses
22
9. The temporal trend in the annual stock status of western Pacific
bigeye tuna
26
10. The temporal trend in the annual stock status of western Pacific
yellowfin tuna
27
11. Catches of yellowfin, skipjack, bigeye, Pacific bluefin and albacore
tunas in the eastern Pacific Ocean by fishing method, 1988–2008
32
12. Catches of yellowfin tuna in the eastern Pacific Ocean by fishing
method, 1975–2007
33
13. Catches of bigeye tuna in the eastern Pacific Ocean by fishing method,
1975–2007
33
Tables
1. Annual catches of bigeye tuna in the eastern Pacific Ocean 13
2. Comparison of scientific advice for eastern Pacific purse-seine closures
and the closures adopted
17
3. The state of the stocks of the major market species of tunas 29
4. Catches of bigeye, skipjack and yellowfin tunas by six countries in 2003 34
vii
Acknowledgements
The author thanks the FAO Fisheries and Aquaculture Department for financing
this publication and, in particular, thanks Dr Jacek Majkowski, of the Marine
and Inland Fisheries Service (FIMF) for commissioning the work and providing
valuable comments on a draft of the paper.
Thanks are also extended to Guillermo Compeán, Director of Investigations of
the Inter-American Tropical Tuna Commission (IATTC), Bob Kennedy, Executive
Secretary of the Commission for the Conservation of Southern Bluefin Tuna
(CCSBT), Driss Meski, Executive Secretary of the International Commission for the
Conservation of Atlantic Tunas (ICCAT), and Andrew Wright, Executive Secretary
of the Western and Central Pacific Fisheries Commission (WCPFC), for their
permission to reproduce figures from the publications of those organizations.
The author is also grateful for the assistance provided by Guillermo Compeán,
Bob Kennedy, Driss Meski, Peter Miyake and Andrew Wright, who reviewed
various sections of the paper and made helpful comments.
viii
Acronyms and abbreviations
B
MSY
biomass for maximum sustainable yield
CCRF FAO Code of Conduct for Responsible Fisheries
CCSBT Commission for the Conservation of Southern Bluefin Tuna
CPC Party, cooperating non-party, fishing entity or regional economic
integration organization (collectively IATTC)
CPUE catch per unit effort
FAD fish aggregating device
F
MSY
fishing effort for maximum sustainable yield
IATTC Inter-American Tropical Tuna Commission
ICCAT International Commission for the Conservation of Atlantic Tuna
IOTC Indian Ocean Tuna Commission
IUCN International Union for Conservation of Nature
MSY maximum sustainable yield
NGO non-governmental organization
RFMO regional fisheries management organization
RMO regional management organization
SCRS Standing Committee for Research and Statistics (ICCAT)
TAC total allowable catch
TBAP Tuna and Billfish Assessment Programme
UN United Nations
UNCED United Nations Conference on Environment and Development
UNCLOS United Nations Convention on the Law of the Sea
UNFSA United Nations Fish Stocks Agreement
VPA virtual population analysis
WCPFC Western and Central Pacific Fisheries Commission
WCPO Western and Central Pacific Ocean
[...]... catches of other species such a sharks to optimum levels Nevertheless, for reasons of brevity, this paper will only deal with their role with respect to conservation and management of the major market species of tunas such as albacore tuna, bigeye tuna, bluefin tuna, skipjack tuna and yellowfin tuna Earlier it was noted that the highly mobile and in some cases migratory nature of tunas makes international. .. This section will focus on each of the major market species of tunas for each of the commissions in turn Majkowski (2007) provides a general review of the development of the fisheries and of the state of the stocks for these species 5 Article VIII, International Convention for the Conservation of Atlantic Tunas Article V: Agreement for the establishment of the Indian Ocean Tuna Commission 7 Article II:... standards for fisheries management Section 3 introduces the five tuna RFMOs and reviews the management and status of the major stocks for which they are responsible Section 4 discusses incentives and disincentives for members of organizations to cooperate within the RFMOs Section 5 describes recent work that contemplates the use of rights-based management systems to improve the management of tuna fisheries. .. most obvious waste is the result of overexploitation of fisheries, which is the case in some of the tuna fisheries discussed in Section 3 below In addition, a fishery 2 World Bank and FAO 2008 The Sunken Billions: The Economic Justification for Fisheries Reform Agriculture and Rural Development Department Washington DC, World Bank International management of tuna fisheries — Arrangements, challenges... technical paper reviews the current management of tuna fisheries by the five tuna regional fisheries management organizations (RFMOs) in the light of international standards and modern expectations for fisheries management It discusses conditions that provide incentives for participating states to take (or not to take) cooperative actions to conserve resources Shortcomings of traditional negotiations among... to allocate access to shared fisheries are identified and finally the use of rights-based systems is advanced for the conservation and management of tuna fisheries as a means of addressing those shortcomings It has been understood for many years that tuna fisheries and other fisheries for highly migratory species need international cooperation for their conservation and management This was recognized... and management of tuna species and other species taken by tuna fishing vessels in the eastern Pacific Ocean The conservation and management objective for the commission4 is “to keep the populations of fishes covered by the convention at 3 4 Article 3, Convention for the Conservation of Southern Bluefin Tuna Article II, Convention for the Establishment of an Inter-American Tropical Tuna Commission International. .. estimated to be in the range of 0.57–0.63, suggesting at that time the need for even more urgent responses by the commission ICCAT adopted recommendations addressing management of fisheries for bigeye in 1998 and in each year from 2000 to 2005 The 1998 recommendation limited the number of fishing vessels longer than 24 m to the average of the 19 20 International management of tuna fisheries — Arrangements,... advice, the IOTC has not taken any management action directed at the management of albacore fisheries Bigeye tuna The 2005 and 2006 catches of bigeye tuna were around the level of the MSY, currently estimated to be 111 000 tonnes, but the catches from 1996 to 2004 exceeded the MSY The results of the 2006 stock assessment for bigeye tuna were broadly similar to the results of earlier assessments and indicated... Article II: Convention on the Conservation and Management of Highly Migratory Fish Stocks in the Western and Central Pacific Ocean 6 The tuna RFMOs and the stocks for which they are responsible Skipjack tuna provide about half of all tuna catches and are important in the areas covered by each of the tuna RFMOs except for CCSBT but are not the object of any management measures because the stocks have generally . the current management of tuna fisheries by the five tuna regional
fisheries management organizations (RFMOs), focusing on the management of
target species. reviews the current management of tuna fisheries by the
five tuna regional fisheries management organizations (RFMOs) in the light of
international standards
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